IMARES Wageningen UR (IMARES - Institute for MArine Resources & Ecosystem Studies)

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Management plan for the natural resources of the EEZ of the Dutch Caribbean

H.W.G. Meesters, D.M.E. Slijkerman, M. de Graaf, and A.O. Debrot

Report number C100/10

IMARES Wageningen UR

(IMARES - Institute for MArine Resources & Ecosystem Studies)

Commissioned by:

The Ministry of Agriculture, Nature and Food Quality (LNV), Department IZ P.O. Box 20401, 2500 EK The Hague The Netherlands

Contact: H. Haanstra Telephone: 00 31 70 3784905 Mobile: 00 31 6 48131297 Fax: 00 31 70 3786120 Email: H.J.Haanstra@minlnv.nl

Publication Date: 10-10-2010

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IMARES is:

• An independent, objective and authoritative institute that provides knowledge necessary for an integrated sustainable protection, exploitation and spatial use of the sea and coastal zones;

• A key, proactive player in national and international marine networks (including ICES and EFARO).

This research is (co)financed by The Ministry of Agriculture, Nature and Food Quality (LNV)

IMARES, institute of Stichting DLO is registered in the Dutch trade record nr. 09098104,

BTW nr. NL 806511618

The Management of IMARES is not responsible for resulting damage, as well as for damage resulting from the application of results or research obtained by IMARES, its clients or any claims related to the application of information found within its research. This report has been made on the request of the client and is wholly the client's property. This report may not be reproduced and/or published partially or in its entirety without the express written consent of the client.

A_4_3_2-V10.0

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Executive Summary

Preamble

On the 10th of October 2010 the governmental entity known as the Netherlands Antilles is scheduled to cease to exist. Each island will aquire a new status within the kingdom. Following the declaration of an Exclusive Fishery Zone (EFZ) in 1993, an Exclusive Economic Zone (EEZ) has been declared in the Dutch Caribbean on the tenth of June 2010.

The EEZ area concerned, is a large expanse of sea which harbours exceptional biodiversity, and represents an important natural renewable resource potential. The Netherlands Antilles, Aruba and The Netherlands have, therefore, opted to draft a management plan for the EEZ. This initiative began in the year 2005 when the first conference regarding the management of the biodiversity in the EEZ was held. The consensus was that despite a fragmented Dutch Caribbean, the EEZ should always be integrally managed. In 2009 the participants of the second conference confirmed the need for common management and developed common goals, principles and a framework for the management of the Dutch Caribbean waters. Resulting from this conference a management plan was drafted, circulated to all stakeholders and discussed on the 1^st of June 2010. Based on the input and feedback received, as well as subsequent correspondence, this final management plan was jointly developed.

The Dutch Ministery of Agriculture, Nature, and Food Quality (LNV) gave financial support to facilitate the process. This management plan initially stems from the framework policy plan “Natuurbeleid van de Nederlandse Antillen” (2000) that recognized the urgent need for a management plan for the Saba Bank, situated inside the EFZ waters, to ensure sustainable fisheries and protection of its rich biodiversity. It also closely follows the intention of the Kingdom with regards to the goals set forth in the Dutch biodiversity policy programme “Beleidsprogramma Biodiversiteit 2008-2011”. In this respect, as a party to the Convention on Biodiversity, The Netherlands also has a strong international commitment to help stem the global decline in biodiversity.

This management plan outlines the purposes and manner in which the Caribbean Exclusive Economic Zone and Saba Bank in particular may be used in a sustainable manner, based on a shared vision and common set of goals. It outlines the management objectives, as well as key policies, and strategies with which to achieve sustainable management. It also addresses the administrative structure, resource use, financial support, key information needs, and action points most urgently required to set sustainable management in place.

To set the stage for implementation and properly initiate this process governments of The Netherlands Antilles, Aruba and The Netherlands have, among others resolved to:

a) take those steps needed to legally designate the Saba bank as a specially protected national marine area,

b) take all steps necessary to legally designate the Dutch Caribbean EEZ as a Marine Mammal Sanctuary,

c) install a EEZ Marine Resourses Committee to guide the process of further management implementation and

d) allocate the required core funding.

These important intentions are formalized and set in action by means of an agreement between parties.

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Acknowledgments

The Authors of this management plan like to thank especially the Governor of the Netherland Antilles, his excellency Mr. F. Goedgedrag and his wife Mrs. Goedgedrag-Terborg and the honourable Minister F. Tjin A Sjoe. We also thank Commissioners R. Hooker and C. Johnson for their participation and contributions.

Furthermore in alphabetical order we thank the following persons for their support and input: E.

Beukeboom, G.R. Boekhoudt, M. Brown-James, T. de Bruin, G. Coatanroch, J. Cremer, E. Dijkman, F.

Dilrosun, R.J.A. Donner, N. Esteban, J.A. van Franeker, K. Groen, H. van het Groenewoud, W.A. Hansen, C.

de Haseth, A. van Heyningen, P. Hoetjes, T. Johnson, G. Justiana, H. Kock, D. de Koning-Stam, E. Kuijper, P. Langebaerd, R. de Leon, R.J. Levenstone, S. Mambi, S. Martha, A. Martis, K. de Meyer, Montanus, P.

Portier, J.L. Prinsen, N. Samson-Coffie, R. Schaap, J. Sierhuis, F. van Slobbe, M. Soleman, P. Stokkermans, T. Timmers, C. Tsirikidis, M. van der Velde, M. Vermeij, H. Vonk, E. Werleman, K. Wulf, and last but not least, H. Haanstra and T. Akkerman for their enthusiasm and relentless support during this project.

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Overview of Action points

The following is a shortlist of action points related to important issues which should be addressed by the Dutch Caribbean Committee on Marine Biodiversity and Fisheries (CMBF). The next chapters provide the background information that has lead to the identification of these points.

Funding action points

a. Kingdom partners must decide on a minimum program, and how much core funding will be made available by each party.

b. Allocated funds for use in a simple way keeping red tape within normal proportions and keen on developing longterm joint institutional capacity by means of joint projects and structural funding.

c. Implement a fee system for fisheries and other users.

d. Implement a fee/royalties system for biological exploration and natural products development.

e. Review external possibilities for project funding for nature.

f. Based on a core funding base, develop joint project proposals with which to tap into external funding sources.

CITES (species protection) action points

a. Insofar as not already the case, designate most of the CITES species as fully protected in the Dutch Caribbean EEZ, with maximum penalties for infractions.

b. Develop a research program to document the use of the EEZ by seabirds.

Marine Mammals action Points

a. Join the eastern Caribbean marine mammal sanctuary initiative of neighboring states by declaring the Dutch Caribbean EEZ as a marine mammal sanctuary (No extra research is needed to achieve this).

b. Develop marine mammal research projects to further evaluate and asses the importance of the EEZ as suggested by previous research. In this it may be optimal to tie in to current regional joint projects to identify and quantify marine mammal populations (the French “Agoa” marine mammal sanctuary initiative, the US Stellwagen Bank National Marine Sanctuary (SBNMS) and the “Sanctuario de Mamíferos Marinos de la República Dominicana” (SMMRD). These projects use passive acoustic survey buoys, and photo Identification to compare individual specimens, in particular of humpback whales.

Fisheries action points

a. An unencumbered reciprocal permitting system needs to be designed between The Netherlands and its new Kindom partners that will not only allow for traditional fishing to continue at sustainable levels, but that will also not form unnecessary hindrances to ecologically sustainable development of local fishing and fishing related industry.

b. Facilitate the development and implementation of a catch recording system for commercial and recreational fisheries in the territorial waters outside the marine park boundaries and in the waters of the EEZ.

c. Promote the development of a stock assessment program for species targeted by commercial and recreational fisheries in the territorial waters outside the marine park boundaries and in the waters of the EEZ, including an assessment of conch stocks on the Saba Bank.

d. Facilitate a thorough review and assess available literature on all (potentially) commercially valuable pelagic fish stocks of the EEZ (migratory tuna’s, wahoo, dolphinfishes, swordfish, marlins, scad (Decapturus) and flyingfishes, as well as nonconventional species (e.g. deep water cephalopods).

e. Develop an experimental artificial habitats program for the Saba Bank and a structural FAD program for pelagic EEZ waters.

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f. Propose and test trial fishing methods and conduct exploratory fishing to identify potentially unfished or under-exploited stocks.

g. Participate actively in international fora to defend Dutch Caribbean fishing interests and rights (e.g.

ICCAT).

h. Commit to co-operate to achieve the eradication of IUU (Illegal, Unreported, Unregulated) fishing in the territorial waters and the EEZ.

Shipping and anchoring action points

a. Based on the mapping of shipping routes, seasonal current and wind factors, as well as a map of sensitive habitats within or near to the EEZ, an ecological sensitivity model and map to identify risk- prone shipping issues and habitat areas should be developed.

b. Use this to develop a disaster preparedness plan to deal with the most probable scenarios, all building upon the regionally available capacity and cooperation.

c. Apply and enforce rules and regulations as based on national and international law.

d. Clarify or designate the shipping channels that should be used if traffic across the Saba Bank is to be limited, as well as the kind of ships that all limitation refer to.

e. Optic cable installation for Saba and St. Eustatius needs to be closely followed by the committee to make sure environmental damage will not occur.

Pollution action points

a. Apply and enforce rules and regulations as based on national and international law.

b. Conduct baseline pollution monitoring studies to identify and quantify important pressures.

c. Develop facilities to accept, handle and process liquid and solid waste from ships, at minimally one location in the Dutch Caribbean (there is a great shortage of such facilities in the Caribbean).

Saba Bank action points

a. Pursue PSSA status for the Saba Bank.

b. Implement basic protective management measures for the Saba Bank as outlined in the Saba Bank Special Marine Area Management Plan 2008 (Lundvall 2008).

c. Implement a long-term regular fishery catch monitoring program on Saba.

d. Quantitatively describe and map the various habitats occurring on the Bank (with particular emphasis on identifying potential mass spawning sites for adults and nursery grounds for juveniles).

e. Quantitatively asses the various fish stocks in terms of distribution, size and structure.

Enforcement action points

a. Study and improve offshore remote monitoring capabilities. The IAS at Saba port will soon be placed more favourably but shore radar for the SSS islands are also part of the current Saba 10-year strategic plan.

b. Set up closer cooperation with the Coast Guard, Customs and other maritime enforcement agencies to effectuate offshore enforcement, by combining strengths and complementing shortcomings.

c. Provide and equip trained personnel for fisheries enforcement in port and shore-side processing of open sea enforcement cases as produces by the Coast Guard.

d. Set up enforcement (and research, see section 3.4.2.) cooperation with neighbouring France, particularly as it relates to their marine mammal sanctuary.

Research, monitoring, and data storage action points

a. Identify baseline data needs flowing forth from international treaty obligations, compile analyses and sythesise these to identify additional information needs.

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b. Commission knowledge institutes indicated to design a joint proposal on how to simply and effectively organise and implement broad stakeholder access to knowledge and data regarding the EEZ.

c. Stimulate the development of a research program for the Saba Bank and other important areas within the EEZ.

d. Encourage the development of an integrative evaluation framework for permitting such as used in the North Sea.

e. Commission knowledge institutes, in collaboration with the park management stakeholders, to identify monitoring and research needs and design a research program, monitoring system, and data sharing structure for the EEZ, based on key biotic (e.g. keystone, target and indicator species) and abiotic indicators of ecosystem health.

Deep sea action points

a. Assemble, review and assess existing literature on the Dutch Caribbean deep sea and adjacent areas.

b. Encourage the organization of a deep sea expedition to collect, describe and document the biodiversity, possibly coupled this with preliminary bioprospecting.

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1 Introduction

Currently, the constitutional restructuring of the Kingdom of the Netherlands towards a new status for the various islands of the Netherlands Antilles is in progress. On the 10th of October 2010 the governmental entity known Netherlands Antilles is scheduled to cease to exist. The islands of Curaçao and Sint Maarten are intended to become autonomous territories, as is the case already with Aruba. The islands of Bonaire, Sint Eustatius and Saba together known as the BES (‘Bijzondere Eilandelijke Status’) islands, will become more closely tied to the Netherlands. They will become part of the Netherlands and have the status of 'special municipality'. Since June 2010 there is an Exclusive Economic Zone (EEZ) in the Dutch Caribbean including the BES islands (‘Besluit grenzen exclusieve economische zone van Aruba en de Nederlandse Antillen’ published on 10 June 2010).

June 2010 conference

In his opening speech for the Maritime conference held on June 1, 2010, in Bonaire, the Governor of the Netherlands Antilles, Excellency Mr. Fritz Goedgedrag, welcomed the initiative to manage the EEZ biological resources. He expressed the hope that while the Netherlands Antilles stands to be dismantled after 10-10- 2010, the same would not be the case with their joint biodiversity in the EEZ. He found it very wise that before the dissolvement of the Netherlands Antilles comes into effect, the entities will have taken initiatives for cooperation in the field of common management of biodiversity, management of the Saba Bank, and designation of the Dutch Caribbean EEZ as a marine mammal (whale) sanctuary, based on an active and sustainable policy. He further stressed the supranational character of the matter and that it can only be dealt with through interregional and international cooperation. He concluded succinctly by saying “In this field autonomy seems an inadequate phenomenon”.

In his turn, the Minister of Economic and Labour Affairs of the Netherlands Antilles, Honourable Mr. Ing.

Elvis Tjin A Sjoe, pointed out that the people of the Netherlands Antilles have always been strongly aware of their dependency of the surrounding sea and its natural resources. He continued by saying that in light of the constitutional reforms under way for the Netherlands Antilles, and to be properly prepared to further develop the local and international fisheries of the islands in a responsible and sustainable manner on behalf of the local fishermen and fisheries of all the islands, it is a necessary and very important condition for the Netherlands Antilles to draft a management plan for the Exclusive Economic Zone (EEZ) of the Caribbean part of the Kingdom so as to manage this enormous area in a proper manner.

The current Caribbean EEZ (Stb. 2010, 277) consists of two sectors, a southern sector associated with the leeward ABC-islands (Aruba, Bonaire and Curacao) lying off the coast of Venezuela, and a northern sector, associated with the windward islands of Saba, St. Eustatius and St. Maarten (Fig. 1 and 2).

Respectively these sectors have a surface area of approximately 71.198 en 21.803km² (Data VLIZ).

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Figure 1. Maritime boundaries ABC islands (Appendix 1 from “Besluit grenzen exclusieve economische zone van Aruba en de Nederlandse Antillen”, Stb. 2010, 277).

The Netherlands Antilles, Aruba and The Netherlands have opted to draft a management plan for the Exclusive Economic Zone (EEZ) of the Caribbean part of the Kingdom (Fig. 1 and 2). The Dutch Ministery of Agriculture, Nature, and Food Quality (LNV) has given financial support to facilitate this intention. This management plan initially stems from the policy plan “Natuurbeleid van de Nederlandse Antillen” that recognizes the urgent need for a management plan for the Saba Bank, situated in the EEZ waters, to ensure sustainable fisheries and protection of the rich biodiversity. It also closely follows the intention of the Kingdom with regards to the goals set forth in the Dutch “Beleidsprogramma Biodiversiteit 2008-2011”. In this respect, as a party to the Convention on Biodiversity, The Netherlands also have a strong international commitment to help stem the decline in biodiversity.

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Figure 2. Maritime boundaries Windward Dutch Antilles (Appendix 2 from “Besluit grenzen exclusieve economische zone van Aruba en de Nederlandse Antillen”, Stb. 2010, 277).

Particularly in the marine arena, the threats to biodiversity are large because the protection regime is still very limited. Furthermore, a large part of the world population depends critically on the natural resources of the coastal zone. Both of these global generalizations apply to the Netherlands Antilles and Aruba where longterm declines in coastal resources have been taking place but where at the same time the people have also always been strongly aware of its dependency on the surounding sea and its marine resources. The tripartite initiative to draft a management plan for the Caribbean EEZ is wholeheartedly supported by the Kingdom of the Netherlands as specifically mentioned in the programme ‘Biodiversiteit werkt: voor natuur, voor mensen, voor altijd’. Specific attention in this programme is focussed on the need for protection of mangrove areas, coral reefs, delta areas and estuaries, all of which are crucial to the conservation of biodiversity, fish stocks and local economic activities. Adaptation of the existing protection regime of the Antilles with regards to the structural changes at hand forms part of the 10 priorities set forward by the Kingdom within its biodiversity policy.

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Under the United Nations Convention of the Law Of the Sea (UNCLOS, 1982), an Exclusive Economic Zone (EEZ) is a maritime zone over which a state possesses special rights for the exploration and use of marine resources (Fig. 3). The EEZ starts at the outside boundary of the Territorial Waters, 12 nautical miles out from the coastal baseline, and extends to 200 nautical miles (370.4 km) from the coastal baseline of the Territorial waters. In the case of adjoining states, the location of maritime boundaries of the EEZ also depend on boundary agreements reached with the bordering states (or islands). States also have rights to the seabed of the continental shelf up to 350 nautical miles (650 km) from the coastal baseline, where this extends beyond the EEZ, but this does not form part of their EEZ

Figure 3. Zones of national jurisdiction under Law of the Sea Convention

The declaration of an EEZ in the Dutch Caribbean (Fig. 1 - 2) is the responsibility of the Kingdom and was effected in June 2010 (Stb. 2010, 277). The management of the EEZ can be transferred by the Kingdom to the separate islands or countries (‘Besluit grenzen exclusieve economische zone van Aruba en de Nederlandse Antillen’, Stb. 2010, 277). The borders (equidistance lines) between the islands and neighbouring countries are shown in Figures 1 and 2.

The southern EEZ sector, associated with the ABC-islands, is almost completely surrounded by the EEZ of Venezuela except on the northern side where it borders the EEZ of the Dominican Republic. The northern EEZ (Fig. 2) is limited in the east by the EEZ of Saint Kitts and Nevis, in the south by Venezuela, in the west by Puerto Rico and US Virgin Islands, and in the north by Anguilla and France (Saint-Martin). Only with Venezuela a treaty has been signed on the demarcation of the EEZ. Borders with other countries have been determined based on equi-distance lines.

Two distinct EEZ sectors

The EEZ waters of the Dutch Caribbean constitute of two distinct zones (Fig. 1 and 2). These differ significantly in terms of their biological resources (as discussed in the later chapters). The fact that the two EEZ sectors are widely separated also has large practical consequences in terms of enforcement and management cooperation.

An important feature in the northern sector of the windward Dutch Caribbean is the Saba Bank. The island that historically uses the Saba Bank most is the island of Saba (Boeke 1907). A large part of the Bank falls within the territorial sea of Saba. In contrast, only an extremely small part of St. Eustatius’ territorial waters lies on the bank while for St. Maarten the Saba Bank lies fully outside its territorial waters. Both Saba and St. Eustatius will become part of one entity (the Netherlands) following the planned constitutional changes.

Saba is the island closest to the bank which will have large practical consequences for management choices. International cooperation for this EEZ sector in terms of international joint research and enforcement with parties outside the Kingdom will mainly involve the USA and France.

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In contrast to the northern sector, the southern EEZ sector does not contain shallow bank areas and is shared by Aruba, Curaçao and Bonaire, each of which will have a distinct national status once the constitutional restructuring has been completed. Good forms of cooperation between these entities will be important for optimal management of this sector. The main neighboring state for potential international cooperation in this sector is Venezuela. Several incidences of illegal industrial fishing interception of Venezuelan vessels in Antillean waters have occurred. For the southern sector, the island with the largest share of EEZ surface is Curaçao and that with the least is Bonaire. Curaçao is the main base for both the Dutch military and coastguard in the Dutch Caribbean, and has traditionally possessed the largest institutional capacity in terms of management, research, disaster readiness, search and rescue and enforcement capability of the Dutch Caribbean.

1.1 General Objective

The long-term overall goal and fundamental purpose for the management of the Dutch Caribbean EEZ is to achieve:

Common sustainable management of marine biodiversity (the living and non-living resources), which includes the protection of species, and habitats in the waters and on the seabed of the Dutch Caribbean EEZ and the zone between the borders of the Island marine parks and territorial waters, with a particular focus on special areas such as Saba Bank and particular species

¹

.

The Dutch Caribbean EEZ is proposed as a marine area, with common policies and management, where the emphasis is on sustainable management of human activities, species protection, including marine mammals, and habitat protection.

1.2 History and scope of this management plan

The Netherlands Antilles, Aruba and The Netherlands have jointly opted to draft a management plan to achieve a coherent common and coordinated management for the offshore maritime areas of the Exclusive Economic Zone (EEZ) of the Caribbean part of the Kingdom. The Netherlands Ministery of Agriculture, Nature, and Food Quality (LNV) has provided support to facilitate this intention by helping to draft this document. This management plan outlines the purposes and manner in which the Caribbean Exclusive Economic Zone may be used in a sustainable way. It outlines the key management objectives, as well as key policies, and strategies through which sustainable management can be achieved. It also broadly addresses the necessary administrative structure, resource use, financial support, staff needs, and monitoring plans.

While this plan serves as a background document for the new EEZ commission, called the Caribbean Committee on Marine Biodiversity and Fisheries (CMBF), it is beyond the scope of this plan to work out all issues in depth. The task of more narrowly setting priorities and working out the practical details and alternatives for all the various issues that need to be addressed and implemented, will fall under the responsibility of CMBF. The final decisions regarding the various autonomous marine areas (such as the territorial zones (from the seaward border of the marine park out to 12 nm) always remain with the government of the respective kingdom members participating in this initiative.

1 Oil and gas resources are excluded from this management plan.

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Sustainable use of a dynamic and as yet imperfectly understood marine ecosystems can only be achieved by adaptive management, allowing for best practices and new insights to be implemented when available.

Periodic management updates are critical to adaptive management of the EEZ, as are effective interaction and interchange between the scientific knowledge base, management strategy, monitoring studies and management implementation. The area for which this management plan is intended however includes also part of the territorial waters (see Figure 4).

Figure 4. Boundaries of the area that this management plan is focussed on.

1.3 Development of the management plan

This document states the significance, mission and goals of the management of the Dutch Caribbean EEZ.

A general background on the natural resources of the area as well as human use, and known impacts and threaths is given in Chapter 2. The actual management actions for the Dutch Caribbean Marine Management Area that are proposed to guarantee progress towards the mission and goals are clarified in Chapter 3. Chapter 4 addresses research and monitoring needs necessary to fullfill obligations from international treaties as well as the required data storage facilities. A financial and enforcement framework as part of the governance of the area are described in Chapter 5.

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2 Background information on the Dutch Caribbean EEZ

The Dutch Caribbean is part of the “Large Marine Ecosystem” Caribbean Sea (UNEP). Large Marine Ecosystems (LMEs) are relatively large areas of ocean space of approximately 200,000 km² or greater, adjacent to the continents in coastal waters where primary productivity is generally higher than in open ocean areas.

The Dutch Caribbean is a special case, because it consists of two parts, a northern and a southern sector (Fig. 1 and 2) that are separated by a distance of 540 to 1000km. There are large differences between these two sectors because of oceanographic and geological differences. Sea currents and hurricanes are crucial to the functioning of the ecosystems on and around the islands, as well as to the benthic and pelagic habitats farther offshore. The frequency of hurricane strikes differs and is an order of magnitude higher in the northern sector of the EEZ compared to the southern sector.

2.1 Geographical information

The islands of the Caribbean, also called the West Indies, are made up of the Lesser Antilles and the Greater Antilles (Fig. 5). The islands are a long volcanic island arc, most of which wrap around the eastern end of the Caribbean Sea on the western boundary with the Atlantic Ocean, and some of which lie on the southern fringe of the sea just north of South America. The Lesser Antilles more or less coincide with the outer edge of the Caribbean Plate, and many of the islands were formed as a result of subduction when one or more Atlantic plates slipped under the Caribbean Plate.

Figure 5. Caribbean region and the West Indies including the EEZ of the Dutch Caribbean.

The two main groups of the Lesser Antilles are the Windward Islands in the north and the Leeward Islands in the east. The Windward Islands are thus named because they were more windward to sailing ships arriving

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in the New World than the Leeward Islands, given that the prevailing trade winds blow east to west. The trans-Atlantic currents and winds that provided the fastest route across the ocean brought these ships to the rough dividing line between the Windward and Leeward Islands.

A third category which is part of the Lesser Antilles were the Netherland Antilles (now the countries the Netherlands, Aruba, Curaçao, and St. Maarten). The Netherlands Antilles consist of two groups of islands, one in the south just off the coast of Venezuela (the Dutch Leeward Islands or the ABC islands), and one in the northeastern Caribbean consisting of St. Maarten, St. Eustatius and Saba (referred to as the Dutch Windward Islands). The northern part of the island of St. Martin is Saint-Martin (Collectivity of St. Martin) and belongs to France, while the southern part, St. Maarten, is part of the Netherlands Antilles.

In the Netherlands Antilles some of the main islands also have small satellite islands such as Klein Bonaire (part of the island territory of Bonaire) and Klein Curaçao (island territory of Curaçao) and some very small islands and rocky outcrops such as, Green Island and Diamond Rock (Saba), Guana Key, Hen & Chickens, Cow & Calff, Molly Beday and Pelican Key (St. Maarten).

2.1.1

The Saba Bank

In the Dutch Caribbean, coral reefs are typically found in shallow nearshore waters, inside the territorial waters of the island. In this respect the Saba Bank forms a large exception as it is a shallow significantly coralline area that largely lies outside the territorial waters of the nearest islands and hosts extensive coral reefs.

Figure 6. Bathymetry of the Saba Bank and surrounding region (Data Netherlands Hydrographic Service).

The Saba Bank (17^o25' N, 63^o30' W) is an undersea elevation with a flattened top, a bank, 3 - 5 km Southwest of the island of Saba and 25 km west of St. Eustatius (Fig. 6). It rises approximately 1000m above the general depths of the surrounding sea floor and its shape is somewhat rectangular, the long axis trending ENE-WSW. With a length of 60-65 km and a width of 30-40 km, the total surface area is

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approximately 2200 km² (measured along the 200 m isobath). The platform is somewhat tilted with the north-western part of the surface being deeper than the south-eastern part. The largest part of the bank is between 20 and 50 m depth, but a substantial eastern part (app. 225 km²) lies between 10 and 20 m depth. On its western rim, depths are around 50 m, while on the eastern and south-eastern edges, where a prominent coral ridge system (55 km long) runs along the platform, minimum depths vary between 7 and 15 m (Van der Land 1974, MacIntyre et al. 1975). The Saba Bank is now considered to be a classic subsurface atoll consisting of a submerged mountain with a margin or ring of actively growing coral reefs.

As such it constitutes the largest atoll in the Atlantic Ocean Basin and stands among the largest atolls on earth².

2.2 Geomorphology

The Caribbean islands have a relatively recent geomorphological history. The Caribbean basin developed approximately 200 million years ago when islands arose from the seafloor as a result of processes on the borders of this basin. The islands of the Caribbean Sea, and adjacent areas are sorted by size and location into the Bahamas, the Lesser Antilles, and the Greater Antilles. The "Greater Antilles" refers to Cuba, Jamaica, Hispaniola (Haiti and the Dominican Republic), and Puerto Rico and their associated satellite islands. The Greater Antilles are made up of continental rock, partly from North America, as distinct from that of the Lesser Antilles, which are mostly young volcanic or coral islands. The Saba Bank is probably of volcanic origin but after the last glacial period the Bank was an island that became submerged since 5.000 years ago and has been covered by carbonate rock and carbonaceous sediments (Van der Land 1977).

2.3 Marine habitats and fauna

Marine habitats of the Caribbean EEZ can be categorized as either benthic or pelagic, though the two can not be considered isolated from each other as they are closely linked through many ecological and physical processes. The main benthic habitats³ are coral reefs, sand and sediment fields, and sea mounts, ridges and troughs. Maximum depth in the Dutch Caribbean is around 4000m. The pelagic zone supports planktonic and pelagic sea creatures including fish and migratory species such as various commercially important tuna species, wahoo, dolphin fish, whales, dolphins, and sea turtles.

The Caribbean sea is generally oligotrophic having very low concentrations of nutrients such as phosphate and nitrate which enables the proliferation of coral reefs. Coral reefs are large ecosystems built by coral organisms supporting a high diversity of marine life and sustaining many coastal communities in various ways. Because of their enormous biodiversity, they are sometimes referred to as the rain forests of the sea (Connell 1976). The coral organism of the shallow water coral reefs is a highly adapted to the oligotrophic environment through a symbiosis with unicellular algal species. Thus they are dependent on light for their survival. Coral reefs are often, but not necessarily, found together with sea grass beds and mangrove forests. Since the latter two however occur exclusively in the coastal zone, they are excluded from this report which only addresses the area of the EEZ outside the marine parks. The Dutch Antilles are best known for their rich and diverse coral reefs, but the islands, the reefs and the sea are also important habitat for seabirds, sea turtles and marine mammals.

Apart from the coral reefs close to the islands and in shallow waters, little is known about the potential occurrence of reefs in deeper water, so called mesophotic reefs. At present much scientific attention is being devoted to these reefs among which their possible role in serving as a refuge for shallow water corals (Bongaerts et al. 2010). However, little is known about these reefs and much still needs to be researched as concluded in a recent issue of the international journal Coral Reefs which was devoted to these unique reefs (2010, vol. 29, issue 2). Furthermore, it is assumed that the Caribbean must also be home to deep-water or aphotic coral reefs that occur at depths outside of the euphotic zone (Cairns and

2 What exactly constitutes an atoll is open to discussion. There are a number of banks that also are sometimes referred to as atolls (Purdy & Winterer 2001). If these are included, the Saba Bank is still approximately the 15th largest of 394 atolls in the world and by far the largest in the Caribbean.

3 Note that these do not include the nearshore (within the marine parks) habitats which also contain seagrass beds and mangrove areas.

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Chapman 2001). These deep-water reefs may support many species that are hardly known. North of Curaçao and Bonaire there exists a deep trench bordering the Curaçao Ridge, a subsea mountain ridge, which may also harbour aphotic coral reefs and many endemic species (see Fig. 5). However, almost nothing is known about areas such as these.

In the north of the Caribbean the Saba Bank has recently received much attention because of its unique situation and coral reef communities teeming with marine life (Hoetjes and Carpenter 2010). The inner part of the Bank consists of a lagoon like floor where a diverse flora and fauna is present while on the eastern and south-eastern rim are rich coral reefs are growing (Etnoyer et al. 2010, Littler et al. 2010, McKenna and Etnoyer 2010, Thacker et al. 2010, Toller et al. 2010, Williams et al. 2010).

Environmentally there are also large differences between the southern and northern parts of the Dutch Caribbean. Hurricanes seldom strike in the southern part and consequently coral reefs are well developed (Bak 1975, 1977). Fresh water influx from the Amazon and Orinoco however occurs seasonally in this area (Cherubin and Richardson 2007). Currents in the Caribbean are not only important for fresh water impacts and transport of sediment, but they also distribute larvae from one area to another. The crucial importance of demographic connections between reefs for enhancing coral reef resilience to disturbances is only recently being recognized (Steneck et al. 2009). This may also mean that the Saba Bank is very important as a source of larvae for reefs of other islands in the region, notably Puerto Rico and the British and US Virgin Islands.

2.3.1

Seabirds

Relatively little is known about the species composition, density and distribution of seabirds in the offshore areas of the Dutch Caribbean EEZ. Most available data for the offshore deepwater EEZ areas as well as the Saba Bank are based upon observations made during the hydrographical expeditions on the HMS Luymes in 1972 (Poppe 1974), and observations made in April and May 1996 during bathymetric charting of the Saba Bank with the HNLMS Tydeman (Postma and Nijkamp 1996).

Seabird densities in the Caribbean are certainly manifold lower than in former times (McGowan et al. 2006).

Factors that are especially relevant today are 1) the availability of undisturbed nesting habitat, 2) human competition for fish, 3) discard practices by the fishing industry, 4) oiling mortality due to oil spills, 5) net entanglement, and 6) bioaccumulation of anthropogenic contaminants and toxins through the food chain (McGowan et al. 2006). Direct human predation, which used to be widespread, is now illegal in most countries in the Caribbean and likely to be only a minor threat to seabirds in general (e.g., Debrot et al.

2009). Recent surveys on the breeding seabirds of the Dutch Caribbean islands are available for all six islands (Bradley and Norton 2009). The offshore pelagic habitat may be of particular importance as a wintering area for several pelagic seabirds (Murphy 2000).

Apart from the Saba Bank, the other EEZ areas of the Dutch Caribbean fall principally in the pelagic zone referred to as the Venezuela Basin. While seabird density and species richness is highest closer to islands, several species show a marked preference for the offshore areas of the Venezuela Basin. These include:

Sooty Tern, Redfooted Booby, the Brown Noddy, and the visiting Pomerine Skua, and Leach’s Storm Petrel (Poppe 1974). The IUCN status for these species is LC, meaning least concern.

By far most common species of the Venezuela Basin are the Sooty Tern and the Red Footed Booby. Even based on scant data, large differences in seabird density and species composition between the northern and southern halves of the Venezuela Basin are evident. So, for instance while Sooty Terns are sighted equally across the Venezuela Basin, Red Footed Boobies and Brown Noddy are notably more abundant in the southern half of the Venezuela Basin (Poppe 1974). The higher density and species richness of seabirds in the southern half of the Venezuela Basin (north of the ABC islands) may be due to the proximity of breeding areas (Aves Islands) or the higher productivity caused by the seasonal upwelling phenomenon of the southern Caribbean (Sturm 1991).

Postma and Nijkamp (1996) found that seabird densities on the Saba Bank averaged two times higher than off the Bank. On the Saba Bank most seabirds appear to be concentrated around the 200 m isobath. The most common species recorded (April-May) were Red-billed Tropicbird, Magnificent Frigate bird, Sooty

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Tern, and Bridled Tern. Other species were Pomerine Skua, and Wilson’s Storm Petrel. In the pelagic areas adjacent to the bank, the Brown Noddy, and Audubon’s Shearwater were most common. The IUCN status for mentioned species is LC.

All seabirds documented in the offshore EEZ areas so far are quite common (IUCN Red list status LC, least concern), with the exception of rare records for the Black Tern, Bulwer’s Petrel and the endangered Black- capped Petrel (Prins et al. 2009). Given the low coverage of surveys (both in space and time) upon which the above information is based, a dedicated survey by trained seabird observers may well discover more of the less-common birds that have a more critical IUCN status.

2.3.2

Marine mammals

At least 34 species of marine mammals have been documented from the Wider Caribbean Region (WCR):

six species of baleen whales, 24 species of toothed whales, one sirenian (the West Indian manatee), and three pinnipeds (the Caribbean monk seal, the hooded seal, and the California sea lion). For many of these species, waters of the region serve as primary habitat for critical activities that include feeding, mating and calving. Of these, at least 16 species have been recently documented for the waters of the Netherlands Antilles, including the West Indian manatee (Bree and Kristensen 1974; Bree 1975; Post and Nijkamp 1996; Debrot et al. 1998, 2006). Although some species have been studied extensively elsewhere, data concerning the biology, life history, distribution and behaviour of most cetacean (whale and dolphin) and manatee populations in the Caribbean Sea are scarce. The WCR is the one of only two regions in the world to have experienced the extinction of a marine mammal species in the past 250 years. This concerns the Caribbean monk seal, a species which formerly occurred in the Dutch Caribbean (Debrot 2006).

In the North Atlantic, the humpback whale ranges from tropical waters in the Caribbean to Arctic waters.

During the winter, the majority of the population congregates to mate and calve in a number of locations among the reefs and islands of the West Indies. The western North Atlantic population appears to be comprised of relatively discrete feeding stocks. These include the Gulf of Maine, the Gulf of St. Lawrence, Newfoundland-Labrador, Greenland, Iceland, and Norway. Fidelity to feeding areas and migratory destinations from the western North Atlantic have been well documented. The principal breeding areas documented occur on offshore banks and off insular coasts of the Atlantic margins of the West Indies.

Humpback whales have been recorded from nearly all the islands in the West Indies, however. Humpback whales in the Caribbean are strongly associated with banks and other shallow waters. There is little information on the summer feeding grounds used by the humpback whales that winter in the Eastern Caribbean. An understanding as to the apparent lack of recovery in the southern habitat areas is limited by the paucity of information on the relationships between individuals wintering in the Eastern Caribbean waters to those in other feeding and breeding areas. Applying photo-identification techniques could help address these questions.

The French have carried out a one-time intensive survey in the adjoining EEZ of Martinique and Guadeloupe and identified 12 cetacean species, but apart from this survey very little is known about population densities and migratory behaviour of sea mammals in the areas adjacent to the Windward Dutch Caribbean EEZ sector.

Relatively little is known about the marine mammals in both sectors of the Dutch Caribbean EEZ. While some cetacean surveys have been done for the Leeward Dutch Islands, very little is known for the Windward Dutch Islands and even less is known about the occurrence of cetaceans in the offshore areas.

Marine mammal densities in the Caribbean, especially of the large whales that were formerly commercially targeted, are certainly manifold lower than in former times and are now slowly recovering from former overexploitation. The EEZ areas of the Dutch Caribbean fall principally in the pelagic zone referred to as the Venezuela Basin. Based on limited sightings, Poppe (1974) suggests that the southern part of the Venezuela Basin has higher densities of cetaceans than the northern half. This would correlate with the higher density and species richness of seabirds observed in the southern half of the Venezuela Basin (north of the ABC islands) (Poppe 1974) and might be expected based either on the higher productivity caused by the seasonal upwelling phenomenon of the southern Caribbean (Sturm 1991), or the likelihood that the area is part of a migration zone for the cetaceans of the Caribbean (Debrot et al. 1998). Stranding records

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further suggest that the southern Caribbean may have a comparatively high density of beaked whales (Debrot et al. 1998).

Saba Bank

As is the case for seabirds, most available data on marine mammals for the Saba Bank is based upon observations made during ten hydrographical expeditions on the HMS Luymes in 1972 (Poppe 1974), and observations made in April and May 1996 during bathymetric charting of the Saba Bank with the HNLMS Tydeman (Postma and Nijkamp 1996). Post and Nijkamp (1996) have documented the following five species for the Saba Bank and vicinity: Bottlenose Dolphin (Tursiops truncates), Clymene Dolphin (Stenella clymene), False Killer Whale (Pseudorca crassidens), Humpback Whale (Balaenoptera edeni), and unidentified Ziphiids, possibly Mesoplodon sp, (or Z. cavirostris see Bree et al. 1973). Repeated sightings of the Humpback may have involved the same animal, nevertheless, Postma and Nijkamp (1996) suggest that the Saba Bank may be part of the Humpback Whale’s former wintering grounds. Humpback whales, migrating north to their mating grounds, are occasionally seen in the channel between Saba and the Bank.

More recently, a humpback whale with calf was seen on the Saba Bank in the area known as Moonfish Bank during the 2006 Saba Bank expedition. During dives in February 2002 and in January 2006, humpback whale song was heard (Hoetjes, pers. comm.). So while marine mammals have been sighted already many times on the Saba Bank (Hoetjes and Carpenter 2010) little effort has been made to carry out bias-free surveys from which population densities can be calculated. It is likely that a shallow area as large as the Saba Bank could play an important role for marine mammals in a mostly much deeper region.

2.3.3

Sea turtles

Sea turtles, once abundant in the Caribbean Sea and nowadays serving as a flagship⁴ species group, are severely reduced from historical levels, both in population size and range. In general, sea turtles throughout the world are severely threatened. According to the World Conservation Union (IUCN) Red List of Threatened Species persistent over-exploitation, especially of adult females on nesting beaches, and the widespread collection of eggs are largely responsible for the “Endangered” or “Critically Endangered”

status of all six Caribbean sea turtle species.

Five sea turtle species have been documented for the waters of the Dutch Caribbean. These are (with red list status) the nesting Loggerhead (Endangered), Hawksbill (Critically Endangered), Green Turtle (Endangered), and Leatherback (Critically Endangered) (Sybesma 1992, Barmes et al 1993, Debrot et al.

2005), while Olive Ridley (Vulnerable) does not nest and only occurs sporadically (Sybesma and Hoetjes 1992). Recent work suggests that scattered nesting beaches, such as those typical of the Dutch Caribbean, may play a significant role in the eventual recovery of these species. The Leatherback feeds principally in pelagic deepwater areas of the EEZ, while the other three nesting species can be expected to be more closely linked to nearshore benthic and shallow water habitats.

On Aruba, Curaçao, Bonaire, St. Maarten and St. Eustatius park management organizations, NGOs and volunteers are trying to protect turtles and carry out regular surveys, but no governmentally supported structural long term monitoring program is in place.

Saba Bank

The enormous diversity and abundance of marine algae and sponges means that there is ample food for these animals, particularly for Hawksbills. Therefore it is assumed that the area is important as a feeding area for turtles. There have been several confirmed sightings of Hawksbills during a survey in 2007.

Leatherbacks, and Loggerheads have also been seen on the Bank (Lundvall 2008).

2.3.4

Sharks and rays

Little is known about sharks, rays and other cartilaginous fishes in the Dutch Caribbean EEZ, however, IUCN lists many species in the region as having a decreasing trend. Of the 172 species, 4 are Critically Endangered, 4 Endangered, 23 Vulnerable, and 81 as being Data Deficient. More research on abundance and distribution in the region is needed.

The Western Central Atlantic Fishery Commission (WECAFC) in the 2008 reports (WECAFC/XIII/08/02E):

4 iconic animals that provide a focus for raising awareness and stimulating action and funding for broader conservation efforts

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“There is global concern about the status of Sharks (ISCAAP Group 38 – sharks, rays, chimaeras) and the risks of their over-exploitation. Within the WECAFC region, catches of chondrichthyans escalated spectacularly after 1950, reaching a peak of 37.000t in 1994 (Figure B3.9, not shown here). They subsequently declined but rose sharply again after 2001 and in 2006 were approximately 35 000 t and close to the 1994 peak. This is of particular concern because there is very little knowledge of the status of sharks in the region and equally little management of their exploitation. Mexico and Venezuela recorded the highest landings of Group 38 between 2004 and 2006 at above 11.000t per year. USA, Guyana and Cuba reported catches of over 2.000t (Table 2, not shown here). The major contributors to the landings in 2006 were: sharks, rays, skates etc nei; requiem sharks nei; and rays, stingrays, mantas etc.; with a number of other species and species groups contributing smaller masses, including blue sharks, hammerhead sharks, shortfin mako, silky shark, smoothhounds nei, blacktip sharks and dogfish sharks nei. The poor species identification of catch records demonstrates the poor quality of much of the data submitted to FAO from the region and clearly demonstrates the need for improved and careful monitoring. The best information available on the status of sharks in the region remains that reported to WECAFC in 2003. That includes a report by Yegres et al. (1996) on the shark fishery in Venezuela, operating beyond the EEZ of that country in both the Caribbean Sea and the Atlantic Ocean in the south western reaches of the WECAFC area, which listed 31 shark species as being caught. The most common, by number, in the industrial fleet included blue shark (36 percent), reef shark (14 percent), and shortfin mako (12 percent), and in the artisanal fleet, Caribbean sharpnose shark (21 percent), scalloped hammerhead (14 percent) and smalleye hammerhead (12 percent). Bonfil (1997) reported that 34 species of shark occur in the Mexican waters of the Gulf of Mexico, of which 14 are important in fisheries and nine of these he described as being of “prime importance”. Of the nine most important, five were requiem sharks and two hammerhead species.

Based on available documentation, major declines in the abundance of sharks have occurred in the coastal areas of the Dutch Caribbean over the last decades (Debrot and Criens 2005). The WECAF Scientific Advisory Committee recently recommended that countries that have not yet developed and implemented a national plan of action to wisely manage sharks (e.g. Shing 2006) should do so urgently (WECAF 2008).

Saba Bank

Recent observations show that compared to other shallow benthic areas, the Saba Bank still has a remarkable abundance of sharks and other large piscivores, which contribute to its outstanding conservation value (Toller et al 2010). Sharks are often spotted on the Bank, particularly the abundant nurse shark (Debrot, pers. obs), reef shark, blacktip shark and tiger shark (Hoetjes, pers. observ).

Figure 7. Red Hind, a mid-sized commercially important grouper fished to depletion everywhere else in the Dutch Caribbean but still abundant on the Saba Bank (photo: S. Lundvall).

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2.4 Human use and economic significance

What is the present economic significance of the EEZ? Valuation of the economic services of biological resources present in the EEZ is complicated. Aside from direct income, for instance through fisheries catches or fishing licence fees, it is useful to think in terms of the ecosystem services the EEZ provides.

These can be divided into four broad categories of ecosystem services, namely a) provisioning—such as clean water and fish for consumption, b) regulating--such as control of climate and isolation against disease, c) supporting—such as nutrient cycling and decomposition, and d) cultural—such as spiritual and recreational values (Millennium Ecosystem Assessment 2005). In this respect it is especially worth noting the high economic value the EEZ represents in terms of the shipping activities that take place there, the provision of water quality for coastal tourism, recreation and water desalination for human use, as well as unfathomed potential in terms of biopharmaceutical products.

It must be realized that the most important users of the EEZ are not direct users, such as fishermen, but coastal industries, such as shipping and tourism, and the island communities themselves, which depend critically on the ecosystem services that the EEZ provides in terms of shipping routes, clean water etc. At the same time these industries and coastal development activities form one of the greatest threats to the biological resources and sustained health of the EEZ. Ecosystem services obtained “freely” from nature provide a large portion of “real wealth” to nations and need to be taken into account even though in classical economy this has rarely been done (World Bank 1995, Hamilton and Dixon 2003). For instance the use even today of GDP as the main economic index generally overvalues material goods (such as military production), undervalues services, sets key national assets at zero value and even adds the social and environmental costs to the GDP (based on the labour and material costs required to mitigate), instead of subtracting these costs (Henderson 1996). The possibility of requiring other industries, aside from the purely extractive ones (fisheries), to contribute structurally to the financing of management costs should be seriously considered.

Beginning with the seminal work by Spurgeon (1993) a lot more work has since been done on the economic valuation of coral reefs. Cesar and Van Beukering (2004) used their Coral Reef Ecological Economics Model (CREEM) to calculate the economic value of the coral reefs of Hawaii and arrived at an annual net income of US$ 360 million per year, representing a net asset value of some 10 billion dollars. A few studies valuing biological resources (cost benefit analyses) have also been done in the Netherlands Antilles, particularly for the marine parks of Saba (Fernandes 1995, Fernandes et al. 1999), Statia (Bervoets 2010) and Bonaire (Dixon et al. 1993).

In spite of the clear economic benefits flowing from marine resources, governments often fail to provide structural funding for basic management.

2.4.1

Commercial fishery in Territorial Waters

The traditional coastal fishery is relatively well developed on Curaçao and Bonaire. Small boats (<10m) powered by outboard engines are used to fish with hand lines on reef fish close to shore or to fish for pelagic species with trolling lines in the open water but within the territorial waters. The use of gill nets, spear guns, beach seines and fish traps is less common (FAO 2002), but a recent increase in the use of gillnets on the reef and at the mouths of nursery lagoons has been observed (Debrot, pers. observ.) further increasing the already overfished reef fish communities of these islands. The traditional coastal fishery is under pressure and the participation in this industry is in decline (Dilrosun 2007). Maintaining a sustainable and viable coastal fishery was one of the main objectives of the Fishery Policy Plan of the Netherlands Antilles (Van Buurt 2001). However, for Curaçao and Bonaire, fisheries catches represent less than 1% of the annual GDP (CBS 2009). The fishing sector is excessively capitalized (Van Buurt 2001). It is therefore, not profitable and a large part of the produced revenues are expended on imported fuel and vessel maintenance. Nevertheless it is evidently of value as a small and variable source of food for the unemployed and retired (van Buurt 2001).

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Saba Bank

The Saba Bank is partly (app. 25%) located in Saba’s territorial waters (i.e. within 12 nautical miles) and largely in the northern Dutch Caribbean EEZ. Lobster fishery (Appendix 6.2) is the most economically significant commercial fishery (app. 10 boats). In addition to the lobster trap fishery, some fishers target deep reef fish (snapper species) using fish traps and hook and line. Bycatch of other species is common in the lobster pots. The fishery on the Saba Bank has remained relatively stable over the period 2000-2007 with regards to effort, economic value (€ 1 million), total catch and fishing methods (Toller and Lundvall 2008). In absolute numbers the commercial fishery operating from Saba is small with around 50 people participating. However, in relative terms, the importance of the commercial fishery is considerable as these 50 people consist of almost 10% of the economic active part of Saba’s population (Dilrosun 2000).

Figure 8. Immature Silk Snapper, Mutton Snapper and Round Snapperm caught with traps on the deeper edges of the Saba Bank. (source S. Lundvall)

2.4.2

Commercial fishery in the Exclusive Economic Zone

An Antillean commercial fishery on economically attractive species like wahoo, dolphinfish, tuna and swordfish is poorly developed. In 2009 only three local vessels were issued a permit by the Fishery Board to fish in the EEZ. The development of a (semi-) industrial fishery in the EEZ and/or the development of a fish processing industry was the second main objective of the Fishery Policy Plan (Van Buurt 2001).

Since 1998, the Venezuelan operator AVATUN is permitted by Netherlands Antillean government permits to fish with 14 vessels for tuna (1000-1500 MT annually) in the EEZ to the north of Curaçao and Bonaire.

Furthermore, since 1996 vessels of the Spanish operator ALBACORA fly the Antillean flag. These vessels do not fish in the EEZ but target large pelagic species on the high seas (Van Buurt, pers. comm.).

Fishermen from St. Eustatius also use the Saba Bank, probably outside the territorial waters of Saba.

Apparently about 6 fishermen are fishing on the Bank, but more data on fishing frequency and landings is necessary.

2.4.3

Recreational fishery

Recreational fishing charters are offered from most of the Antillean islands. Artisanal fishing often occurs relatively close to shore targeting demersal or reef fish, while most recreational charter fishing occurs in the open water targeting large pelagic species like wahoo, dolphinfish and marlin. Overall, recreational fishing takes place within the boundaries of the territorial waters and probably plays no significant role in the EEZ. Operators at St Maarten do organize fishing trips to the Saba Bank in the EEZ, however, these recreational fishing trips are infrequent and most St. Maarten recreational fishing occurs closer to the island.

Depending on the owner of the fishing charter, captured fish are returned to the sea (‘catch-and-release”) or (part of) the catch is landed for consumption. Selling fish landed by recreational fishers is usually not

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allowed. At present no catch registration system is in place for the recreational fishery and no fee (recreational fishing license) needs to be paid to fish in waters surrounding the Antillean Islands.

2.4.4

Maritime transportation and anchoring

Maritime transportation within the EEZ consists of tanker- and cargo-transport vessels, cruise ships, and fisheries. The first two types will be described in the section below, the others (cruise ships and fisheries) in other sections.

Shipping movements in the northern EEZ and across the Saba Bank appear stable (Lundvall 2008).

Shipping traffic is most intense in the Northern Zone due to the presence of the Statia Oil Terminal. Statia Oil Terminal is an oil transhipment and storage facility for oil transport between the Middle east and the US.

Each month approximately 100 vessels are called in at the terminal (Lundvall 2008), which is equivalent to 3-4 vessels per day.

The heavy ship traffic across the Saba Bank poses a danger to the small artisanal fishing boats, which run the risk of being overrun by the large tankers. According to the fishermen, this risk has caused them to avoid certain traditional fishing grounds, impacting their catches. Furthermore, the large vessels that cross the Bank can not avoid buoys attached to the lobster traps which are consequently lost. Overrunning of fishery vessels, and the loss of gear (pots and buoys) is a direct impact of the vessel movements on the Bank. Additionally, lost pots result in ghost fishing as long as the trap mesh is intact which affects local fisheries income and the ecology of the Bank. Another threat from heavy shipping traffic is the release of bilge water (which may contain oil residues, contaminants and other compounds), sewage water and ballast water. The discharge of ballast water can be accompanied with the introduction of species which may become invasive, resulting in shifts in species composition and ecosystem functioning.

Some ships do not only pass over, but also anchor on the Bank while waiting to dock at Statia Oil Terminals or simply waiting for their next assignment (Appendix 6.2). Instead of using anchor buoys, tankers are actually advised to anchor on the Saba Bank to avoid paying mooring fees to Statia's Ports Authority (Lundvall 2008). Anchoring ships are both tankers and cargo ships with a depth range between 9 and 12 m. Larger tankers avoid the Bank when they are fully loaded because their drought is between 12 and 20 m, which exceeds the water depth in the shallow areas of the Bank.

Most of the boats using Bonaire’s waters are tankers visiting the BOPEC oil terminal and local boat traffic.

Figures that distort this are the movements of tug boats from the harbour, which have at least twice as many journeys as the tankers (due to return trips). There have been changes in the amount of boat traffic in recent years, particularly the amount of airport/jet fuel boats visiting the fuel pier. In waters of Bonaire, the nature of boat traffic has not changed excessively between 2002 and 2004, other than a marked reduction by almost a quarter of local boat traffic, possibly due to the end of ferry services to Curaçao, and doubling of the amount of boat traffic visiting BOPEC.

The Expansion of the Panama Canal is a project being carried out by the Panama Canal Authority (ACP), that will double the capacity of the Panama Canal by 2014 and allow more traffic and bigger ships.

Consequently, maritime traffic in the Caribbean will also increase, as will use of the Dutch Caribbean EEZ, with all the risks that this represents (pers. comm. J. Sierhuis).

An incease in shipping movements is foreseen as Statia’s government has identified Port/Harbour Development as one of six areas of priority for sustainable island development. In particular, the following are highlighted as investment opportunities: Cargo Transhipment; Marina Development; Fisheries (http://www.statiagovernment.com/portdevelopment.html).

2.4.5

Exploitation of natural minerals

Within the EEZ of the Dutch Caribbean, only the Saba Bank is known to be a potential source for oil and gas. Consequently, extensive seismologic research and two drillings have been conducted on the Saba Bank in the past (1977 and 1982). The exploration did however not detect any significant amount of oil or gas and therefore it is not expected that commercial production will be an activity within the EEZ in the foreseeable future. Mineral resources deep under the sea bottom, such as oil and gas, are not considered

IMARES Wageningen UR (IMARES - Institute for MArine Resources & Ecosystem Studies)

Management plan for the natural resources of the EEZ of the Dutch Caribbean

IMARES Wageningen UR

Contents

Executive Summary

Acknowledgments

Overview of Action points

Funding action points

CITES (species protection) action points

Marine Mammals action Points

Fisheries action points

Shipping and anchoring action points

Pollution action points

Saba Bank action points

Enforcement action points

Research, monitoring, and data storage action points

Deep sea action points

1 Introduction

1.1 General Objective

.

1.2 History and scope of this management plan

1.3 Development of the management plan

2 Background information on the Dutch Caribbean EEZ

2.1 Geographical information

2.1.1

2.2 Geomorphology

2.3 Marine habitats and fauna

2.3.1

2.3.2

2.3.3

2.3.4

2.4 Human use and economic significance

2.4.1

2.4.2

2.4.3

2.4.4

2.4.5